Date: 4 May 2009 |
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Draft National Judicial Policy |
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The
National Judicial (Policy Making) Committee in its meeting on 18 -19 April 2009
at Islamabad deliberated upon
various issues and approved the following National Judicial Policy for strict observance of code of conduct, eradication of
corruption amongst judicial officers/court staff and quick disposal of cases: |
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1. Pendency |
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On 1st April 2009, total
pendency of cases at all level of judicial hierarchy in Pakistan is as follows: |
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Supreme Court: | 19055 |
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Federal Shariat Court: | 2092 |
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Lahore High Court: | 84704 |
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High Court of Sindh: | 18571 | |
Peshawar High Court: | 10363 |
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High Court of Balochistan: | 4160 |
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Subordinate Judiciary: | ||
Punjab |
1225879 |
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Sindh | 144942 |
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NWFP: | 187441 |
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Balochistan | 7664 |
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Total | 1565926 |
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2. Independence of Judiciary |
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The Committee
discussed the issue of independence of judiciary and its separation from the
Executive and resolved as under:- |
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i | In
future no Chief Justice or a judge of the superior court shall accept
appointment as acting Governor of the Province. |
ii | No
retired judge of the superior court shall accept an appointment which is lower
to his status or dignity including appointment as presiding officers of Banking
Court, Custom Court and Administrative Tribunals, etc |
iii | Letters
should be written to such judges to relinquish charge of such posts in the
interest of judicial independence/separation from executive. The Government should
relieve such judges and may not make such appointments in future. |
iv |
Instead
of appointing retired judges/judicial officers as Presiding Officers of the
special courts/tribunal, qualified serving judges be
appointed against these posts in consultation with the Chief Justice of the
High Court. |
v |
Posting of serving judges against executive posts in Federal and Provincial Government Departments on deputation be discontinued. All such judges should be repatriated to the respective High Courts, where their services are needed most for expeditious disposal of pending cases |
vi |
All Special Courts / Tribunals under the administrative control of Executive
must be placed under the control and supervision of the judiciary, their
appointments/postings should be made on the recommendations of the Chief
Justice of High Court. |
3. Misconduct |
The Judges of the
superior courts should follow the Code of Conduct for judges. They should take
all steps necessary to decide cases within the shortest possible time. As
provided by Article X of the Code of Conduct: “In his judicial work a Judge
shall take all steps to decide cases within the shortest time, controlling
effectively efforts made to prevent early disposal of cases and make every
endeavor to minimize suffering of litigants by deciding cases expeditiously
through proper written judgments. A judge who is unmindful or indifferent
towards this aspect of his duty is not faithful to his work, which is a grave
fault”. Hence, the Chief Justice of concerned High Court may report cases of
violation of Code of Conduct including incidents of unusual delays/inefficient
performance to the Chairman, Supreme Judicial Council for action. |
4. Eradication of Corruption |
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The Committee also
took serious notice of the increasing complaints of corruption amongst judicial
officers and court staff and resolved that corruption in all its forms and
manifestation should be eradicated and there should be zero tolerance for
corruption. The Committee resolved as under:- |
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i |
The
Lower Judiciary Conduct Rules framed by the Peshawar High Court and adapted by
the Lahore High Court should also be considered for adoption by the High Courts
of Sindh and Balochistan |
ii |
Present
mechanism for initiation of disciplinary action against corrupt and inefficient
judicial officers/court staff be improved. In each
High Court a Cell to be called “Cell for Eradication of Corruption from
Judiciary” may be established in the office of Registrar, under the
supervision of Chief Justice of High Court to entertain complaints with
credible evidence. Copies of such complaints may also be forwarded to the
Registrar, Supreme Court of Pakistan. |
iii |
Action should be initiated against those judicial officers/staff who
carry persistent reputation of being corrupt or have their life style beyond
ostensible means of income. |
iv |
To
eradicate intellectual corruption, the MITs in High Courts may be asked to
examine the judgments of the judicial officers to detect incidents of
corruption/improper conduct. All the judicial officers of the subordinate
judiciary may be asked to send copies of the judgments including bail/stay
orders for scrutiny to MITs. |
v |
Surprise
inspections be carried out by the Chief
Justices/judges of the High Courts to evaluate and monitor the working of
subordinate judiciary. In this regard, Judges of the High Courts be designated
for each division/district on rotation basis. |
vi | The
District and Sessions Judges should also report about the corruption/misconduct
of their subordinate judges. |
vii | Each
judge should himself write order sheets, interlocutory orders and register
petitions. |
viii |
Appropriate
criminal cases under the relevant provisions of law may also be registered
against the judicial officers/court staff involved in the corruption. |
ix |
The corrupt judicial officers be made OSD and kept against their post for the purpose of drawing salary only and disciplinary proceedings should be quickly finalised. |
x | No judicial officer/official should be posted in home district and those remained posted in a particular district beyond 3 years should be transferred to other district |
xi | Naib
Courts having completed 3 months attachment with a court should be sent back to
their parent department instead of transferring them to other court by
rotation. |
xii | The
complaints of corrupt practices and professional misconduct against lawyers
addressed to the Chief Justice of High Court should be forwarded to the Bar
Council for action. The Council should take immediate action on such complaints
under intimation to Registrars of the concerned High Court. |
xiii | Incentives
should be given to the judicial officers who are efficient and honest including
advance increments and posting of choice etc. |
5. Measures for Expeditious Disposal of Cases | |
The
Committee approved the following short term and long term measures for
expeditious disposal of cases:- |
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A |
Short terms Measures in Criminal Cases |
i | For
bail matters, notice to the State for record etc., shall not exceed beyond 3
days and all Inspectors General of Police of the provinces should ensure the
service and compliance of notice within the given time and the court should
dispose of the matter without any further delay. |
ii | Bail
applications with photocopy of the FIR authenticated by the Counsels/AOR should
be accepted and judicial officer should call for record of the case from the
police at his own through special messenger of the police department. |
iii | Bail
application should be decided by Magistrate in 3 days. |
iv | All
cases of bail after arrest are to be decided by the High
Courts, preferably within seven days. |
v | All
criminal cases punishable with imprisonment from 1 to 7 years registered after
1 January 2009 may be kept on fast track for disposal within 3 months. |
vi | All current cases punishable with imprisonment from 7 years and above including death cases shall be decided preferably within a period of 6 months. |
vii | Cases
relating to preventive detentions should be decided within 15 days |
viii |
All miscellaneous applications like transfer application, release of
vehicles on Superdari and other applications arising out of interim
orders should be decided within 3 days. |
ix | No
judge should grant remand in the absence of accused and while granting remand
should strictly adhere to the relevant provisions of Code of Criminal Procedure
and principles laid down in the Hakeem Mumtaz case.
(PLD 2002 SC 590) |
x | Non
completion of investigation and non submission of Challans
in statutory period is a major cause of delays in disposal of criminal cases.
Since, Police plays crucial role in administration of justice; therefore, the
District Police Officers may be asked to ensure that the police should conclude
investigation and submit Challans within the
prescribed period of 14 days. They may be asked that the SHOs who fail to
comply with this statutory provision should be treated as inefficient officer
under the Police Order. The DPOs should also submit list of cases in which Challans are still pending for want of investigation for
inspection and passing appropriate orders by the District and Sessions Judges. |
xi | Production
before court for remand/trial is a statutory right of every prisoner;
therefore, the District and Sessions Judges should ask the jail authorities to
ensure that the prisoners must be produced before the court. The District and
Sessions Judges should also monitor that while granting remand all requisite
procedural formalities should be complied with. |
xii |
Many convicts including women are languishing in jails for want of payment of diyat and fines even in some cases after serving their entire period of sentence of imprisonment. Therefore, an exercise may be carried out in each district to examine and suggest all possible means and measures for payment of diyat and fines including provision of soft loans or releasing them on bail to make payment in installments after earning. |
xiii |
In
murder references, the practice of printing paper books may be discontinued by
the Chief Justice through an administrative order, so as to avoid unnecessary
delay in appeal. |
xiv | In
criminal cases, non representation of accused by counsel is also a cause of
delay in trial; therefore, the Chief Justices of Provincial High Courts in
consultation with the Chairman of the Legal Aid Committee of the Provincial Bar
Councils or Pakistan Bar Council may appoint lawyer in such cases to avoid
delay. |
xv | To
check the tendency of filing false and frivolous cases, the court should take
penal action against the party by imposing fines under section 250 Cr.P.C or filing complaints under section 182 and 211
PPC. |
xvi | The
Courts/Government should make use of the Probation of Offender Ordinance 1960
as well as the Good Conduct Prisoners Probation Release
Act 1926. |
xvii |
Emphasis
should be given on quick disposal of Murder, Narcotics and Anti Terrorism cases
and cases of women and Juvenile offenders etc. |
xviii | To
clear the backlog under different categories, special benches should be
constituted at Principal seat and Branch Registries of Supreme Court and High
Court to decide current/old cases by placing the prioritized ones on fast
track. |
B |
Short Term Measures
in Civil Matters |
i | A
writ petition on institution should be fixed for ‘katchi
peshi’ on the next day and disposed of as quickly as
possible. |
ii | Writ petitions pertaining to service disputes including promotion, transfer and other matter relating to admission of students in professional colleges and allied matters, if competent under the law, should be decided, preferably within 60 days. |
iii |
All
stay matter should be decided within 15 days of grant of interim injunction and
in case of delay, the judicial officer should report reasons to the concerned
Chief Justice of the High Court through Registrar. |
iv | The rent cases may be decided speedily within a period of 30 days. |
v | Civil
Appeals, Writ Petitions and other miscellaneous Review Petitions pertaining to
rent matters should be decided in 90 days. |
vi | All
revision petitions under CPC arising out of interlocutory orders i.e.
Interim stay orders, misjoinder and non joinder of necessary parties, appointment of local
commissioners and non payment of court fee should be decided within 3 months. |
vii | Family
cases should be decided in 3 months time. Civil appeal arising out of family
cases, custody of minors and against interim orders, if competent, shall be
decided within 30 days. For any further delay, reasons be
furnished to High Court. |
viii | Banking
and Tax cases should be decided preferably within 6 months. |
ix | Senior
Civil Judges should decide review cases in 30 days and the trial of current
cases (instituted after 1st January 2009) should be completed within
6 months. |
x | Negotiable
Instrument cases which are decided through summary procedure should be decided
in 90 days. |
xi | Priority
should be given to quickly dispose off women cases, juvenile cases, rent cases,
stay orders, bail matters, small causes and minor offences under the Small
Claims and Minor Offence Courts Order 2002. |
xii | In
the Supreme Court and High Courts, priority should be given to dispose off old
cases, except cases in which special orders were passed by court for fixation
of the cases on specified dates. |
xiii | To
clear the backlog under different categories, special benches should be
constituted for each category on the Principal seat and Branch Registry of the
Supreme Court and High Court. There should be a commitment of judges to decide
the old civil/criminal cases up-to the year of 2008 within one year. |
xiv | The
District Judges should adopt such measures which ensures
handling of 50% of cases from backlog (filed on or before 31 December 2008) and
50% from current cases. |
xv | Civil
and criminal functions of the court should be bifurcated so that the judges can
try criminal and civil cases exclusively. For fuller comprehension of
civil/criminal law and experience, such judicial officers be
rotated periodically. |
C |
Long Term Measures |
i | The
judges of High Courts may also carryout inspection of prisons periodically for
ensuring compliance within prison rules and giving on the spot remedy/relief
according to law. |
ii | Strength
of judicial officers and para legal staff should be
increased to cope with the growing litigation and clear backlog. |
iii | Necessary
funds be provided by Government for infrastructure
support like construction of courtrooms, amenities for lawyers/litigants
parties. The strength of judicial officers should be increased to cope with
rising trend of litigation in the country. Adequate staff, library facilities
and accessory equipment like computers should also be made available to courts. |
iv | While
filing a case, the Advocate should file a certificate to the effect that he
will appear on notice by the court in the case and will ensure his presence on
the date of hearing or some other lawyer will appear on his behalf to conduct
the case, failing which he will be responsible for the consequences. |
v | The
causes of delay in disposal of cases are non service of summons, non filing of
written statements, non filing of appeals timely, non production of evidence,
transfer of cases from one court to other, non punctuality of judges, excuses
of lawyers and non availability of presiding officers, etc. Other reasons for
delay are not following the law and precedents of the superior courts and
contrary judgments by the different courts on identical issues and question of
law. In criminal cases, delay is due to non registration of FIR,
non-cooperation of police with the accused/complainant, non-completing
investigation in time, delay of submission of Challan,
non-production of accused from prisons, getting remand without production of
accused in court, not following the cause list, etc. The relevant persons
namely, judges, lawyers, police and prison authorities should make concerted
efforts to minimize delays and expedite trials. |
vi | Under
the Police Order 2002, the Police Complaints Authorities and District Public
Safety Commissions are setup at various levels for enquiring into complaints
against police regarding misuse of authority, dishonest investigation,
negligence and inefficiency. Therefore, it is needed that in serious matters
references may be filed before these bodies for appropriate action. |
vii | Disparity
in salaries/allowances of the judicial officers in the Province of Punjab and
other provinces may be removed to bring about uniformity. The salary/allowances
of court staff should also be suitably increased. |